Professional Documents
Culture Documents
MISHRA
Asia for the Asian Productivity Pramod K. Mishra
Organization, Tokyo. He has
published a number of articles in
national and international journals of
repute. Dr Mishra has also presented
papers at a number of national and Pramod K. Mishra is presently
international seminars, as well as Chairman, Gujarat Electricity
THE KUTCH
National Institute of Disaster Management published from the UK in 1996. This
( Ministry of Home Affairs, Govt. of India)
book was and continues to be a major
IIPA Campus, 5B - IP Estate, Mahatma Gandhi Marg, New Delhi - 110002 (India)
contribution on theoretical and
EARTHQUAKE 2001
Tel. 011-23702432, 23705583, 23766146
empirical aspects of the economics of
Concept & Printed at Fax : 011-23702442, 23702446
agricultural insurance. He is also the
Colour Edge Website : www.nidm.gov.in
colouredge@live.com, 09811530188 editor of Development and Operation
ISBN 81-8347-000-9 Recollections, Lessons and Insights Contd on back flap
The Kutch Earthquake
2001
i
ii
The Kutch Earthquake
2001
Recollections, Lessons
and
Insights
Pramod K. Mishra
iii
National Institute of Disaster Management
( Ministry of Home Affairs, Govt. of India)
IIPA Campus, 5B - IP Estate, Mahatma Gandhi Marg,
New Delhi - 110002 (India)
Tel. 011-23702432, 23705583, 23766146
Fax: 011-23702442, 23702446
Website: www.nidm.gov.in
Chairman
Gujarat Electricity Regulatory Commission
1st Floor, Neptune Tower, Ashram Road
Ahmedabad 380009, Gujarat, India
Email: pkmgsdma@yahoo.com
List of Abbreviations ix
List of Tables xiii
List of Charts xv
Conversion xv
Foreword xvii
Preface xix
Chapter I Introduction 1
Chapter II Some Recollections 4
Chapter III The Aftermath 17
The State Capital 17
The City of Ahmedabad 20
The City of Bhuj and Kutch District 26
State-level Response 33
Assistance by the Government of India
and State Governments 40
Assistance by the Domestic and
International Community 46
Damage and Destruction: Magnitude
and Spread 51
Media Perceptions 66
Some Experiences of the Great
Hanshin-Awaji Earthquake (Japan) of 1995 67
Chapter IV Assessment of Damage and
Immediate Needs 69
Assessment of Damage to Houses 69
v
Contents
vi
Contents
vii
Contents
Establishment of earthquake
observatories and accelerographs 173
Establishment of a Seismological
Research Institute 174
Establishment of the Gujarat Institute
of Disaster Management (GIDM) 174
Review of disaster management plans 175
Upgrading the emergency response
system and search and rescue capability 175
Community-based disaster
preparedness programme 180
Information, Education and
Communication (IEC) activities 181
Studies on important aspects of
disaster management 182
Social Impact Assessment 185
A Reconnaissance Survey
on Disposal of Debris 185
Benefit Monitoring 186
Benefit quantification 189
Chapter IX An Appraisal 192
The Devastation: A Glimpse 192
Some Important Lessons and Initiatives 194
A Remarkable Reconstruction Programme
and its Performance 200
Some International Experiences and
Comparisons 203
Sharing post-earthquake
reconstruction experiences 203
Some international comparisons 211
Role of the GSDMA 214
Relevance of the GSDMA to other states 216
Consolidation and Sustainability
of Initiatives 219
Chapter X Concluding Remarks 220
Select Bibliography 224
Index 226
viii
List of Abbreviations
ix
Abbreviations
x
Abbreviations
HF High Frequency
HUDCO Housing and Urban Development Corporation
I&B Information and Broadcasting
IAF Indian Air Force
IAS Indian Administrative Service
ICDS Integrated Child Development Scheme
IDRN India Disaster Resource Network
IEC Information, Education and Communication
IFAD International Fund for Agricultural Development
IFFCO Indian Farmers Fertilizer Cooperative Ltd
IIT Indian Institute of Technology
ILO International Labour Organization
IMD India Meteorological Department
INMARSAT International Maritime Satellite Organization
INTACH Indian National Trust for Art and Cultural Heritage
IMO International Migration Organization
IOC Indian Oil Corporation
KPMG Klynweld, Peat, Marwick, Goerdler
L&T Larsen and Toubro
MPLAD Member of Parliament Local Area Development
NBCC National Building Construction Corporation
NCCBM National Council for Cement and Building Materials
NCCF National Calamity Contingency Fund
NCMC National Crisis Management Committee
NGO Non-Governmental Organization
NGRI National Geophysical Research Institute
NICD National Institute of Communicable Diseases
NIDM National Institute of Disaster Management
NTPC National Thermal Power Corporation
OCHA Office for the Coordination of Humanitarian Affairs
ONGC Oil and Natural Gas Corporation
OSOCC On-Site Operations Coordination Center
PHC Primary Health Centre
PMC Project Management Consultant
PMNRF Prime Ministers National Relief Fund
PPPP Public Private Partnership Programme
xi
Abbreviations
xii
List of Tables
xiii
List of Tables
xiv
List of Charts
Conversion
1 Crore = 10 Million
10 Lakh = 1 Million
1 Lakh = 100,000
xv
Foreword
In the present book, Dr. P.K. Mishra, the author, former Agriculture
Secretary, Govt. of India and presently Chairman Gujarat Electricity
Regulatory Commission, made a thorough analysis of each and every aspect
of earthquake management; starting from disaster response to
reconstruction, rehabilitation and recovery, focusing on lessons learnt and
emphasizing on how to improve the system for better results. The book is
highly acclaimed not only in disaster management sector, but in other
sectors too. The book, in real sense, focuses on lessons learnt from the
earthquake, reflecting a common concern in building disaster resilient
country and reducing human, social, economic and environmental losses.
Satendra
01 September 2012 Executive Director
New Delhi NIDM
xvi
Preface
xix
The Kutch Earthquake 2001
xx
Preface
Indian National Trust for Art and Cultural Heritage (INTACH) provided a
brief note on damage to heritage structures. Krishna S. Vasta had prepared
a paper containing an international comparison of earthquake reconstruction
work in selected countries. I have drawn material from these reports.
M. Srikant and Aparna Sonwane of TCS helped me in preparing a
number of tables and charts. P.R. Sompura and J.G. Pandya made available
data from various sources. Hemang Jani made useful comments on an
earlier version of the manuscript. Madhuchhanda Mishra suggested some
improvements in the introductory chapter. K.S. Sugathan, Sankabhai Patel
and L.G. Ambujakshan in Gandhinagar; and Satnam Kaur and Sanjay
Raghuvanshi in New Delhi, provided typing and related assistance.
I thank Leela Kirloskar who edited the manuscript and Arvind Passi
of Magnum Publishing, who contributed with publishing inputs.
I am indebted to the above institutions and individuals who contributed
directly and indirectly to this work. However, any error of analysis or
interpretation remains entirely my responsibility.
This book contains recollections, descriptions and some analyses.
I would be grateful if readers could offer their comments and suggestions
which will be extremely valuable and useful for a more comprehensive
documentation.
Just before this book went to press, on 26 December 2004, a massive
undersea earthquake triggered a Tsunamithe deadliest in living memory
that devastated the coastline of many countries in Asia and Africa including
Indonesia, Thailand, Sri Lanka and India, causing the deaths of over 150,000
people, leaving millions more homeless.
The lessons and insights described in this book become extremely
relevant to the present situation. Even though the nature and geographic
location of the impact of the Tsunami tragedy are different from those of
the Kutch earthquake, the basic approach and strategy are relevant to the
reconstruction and rehabilitation efforts that will require a tremendous
amount of resources, initiatives and innovation.
Pramod K. Mishra
New Delhi
12 January 2005
xxi
xxii
I Introduction
1
The Kutch Earthquake 2001
2
Introduction
3
The Kutch Earthquake 2001
II Some Recollections
4
Some Recollections
The satellite telephone in the state control room was used to try and
contact Bhuj. Some time later, probably less than an hour after the
earthquake, the telecommunication system in the Gandhinagar and
Ahmedabad area broke down. In addition to the complete breakdown of
the landline telephone system, cellular networks also collapsed.
Communication, even between Gandhinagar and Ahmedabad, became
impossible. Initial communication between the state control room and
Bhuj indicated that the situation was serious. By 11.30 a.m., it was clear
that the Bhuj area had been completely devastated by the earthquake.
Information also trickled in from sources other than the official channels.
Some senior officers who had worked in Bhuj earlier, received information
from various sources regarding the devastation.
Prior to receiving information on the massive scale of destruction in
Bhuj, the state control room received information from nearby districts
such as Sabarkantha and Patan, on the impact of the earthquake in those
districts. In fact, the District Collector of Patan informed the state control
room that Kutch had been severely affected. Injured people from the
areas of Kutch close to the Patan district had started coming to the nearby
towns.
In a short time, many senior officers reached the state control room
and offered their services for emergency duties.
Search and rescue operations need a large number of equipment such
as bulldozers, cranes, and concrete cutters. Efforts were made to mobilize
such equipment from any sources that were available.
5
The Kutch Earthquake 2001
details and was told that it was somewhere in Kutch. The most useful
piece of equipment was the satellite phone backed by the police wireless.
In the beginning, small glimpses of the magnitude of the tragedy started
coming in sporadically and in fragments.
6
Some Recollections
7
Damaged office of the Collector and District Magistrate at Bhuj
The Kutch Earthquake 2001
8
Some Recollections
9
The Kutch Earthquake 2001
10
Some Recollections
11
The Kutch Earthquake 2001
Topno was relieved to see that his wife was safe and sound but his
house was in shambles. Blocks of masonry had fallen outwards and the
roof was precariously balanced. Scrambling through the rubble, he
managed to collect some clothes and items of daily use but did not have
the courage to fully inspect the damage inside.
As he stood by the entrance to the bungalow, he saw a man of about
35 years of age, pulling a hand-cart loaded with the mangled and bloody
remains of what must have been his family. Seated on the cart was also a
small girl, presumably his daughter, seriously injured and crying uncontrollably.
After some time, he reached the collectorate. The buildings were in
shambles and people were milling about the premises. The enormity of
the catastrophe and the situation made it difficult for the Collector, the SP
and the DDO to determine a course of action immediately. They felt that
no amount of training would have prepared them for tackling a situation
where the administrative machinery of the district itself was affected. It
was decided then and there that the police would take up the task of
rescue operations and the revenue and panchayat administration would
concentrate on providing medical assistance and relief.
The military hospital was the only functioning medical facility in the
vicinity which was soon overwhelmed by the deluge of dead, dying and
injured persons. Fortunately, by 11 a.m., a few enterprising private doctors
had begun medical relief activities at an open ground which later became
famous as Hospital Ground. Though there was only a ramshackle hut, the
doctors there continued their efforts with whatever little equipment and
medical supply that was available. The district administration also
concentrated its efforts to provide medical supplies. Medical stores were
opened and supplies diverted to the ground. A team of runners was deployed
to obtain the supplies from the panchayats medical store near the Ayna
Mahal area, one of the worst affected parts of the city. Soon, the parade
ground became the centre of medical relief and became a full-fledged field
hospital. Topno left the area at about 4 p.m.
It was only at about 5 p.m., when he was trying to review the
intermittent damage reports pertaining to the rural areas at the district
12
Some Recollections
panchayat office, that he received the news that most parts of Gujarat had
been hit by a severe earthquake and that Kutch had been severely affected.
Upon meeting the Collector he was given the encouraging news that relief
materials were being dispatched to Kutch. They then proceeded to the
field hospital, which by then had stabilized.
The air was thick with the smell of burning flesh and smoke. By 7
p.m., temporary lighting arrangements were provided to the hospital ground
and new teams of doctors had arrived.
It was about midnight when he reached the taluka panchayat office
after obtaining a cardigan from his wife, awaiting the relief truck which
had been dispatched, accompanied by some of his employees. The night
was bitterly cold as he lay huddled in his vehicle trying to grab some rest,
but sleep was elusive and his thoughts were racing. He realized how
fortunate he was to have survived this cataclysm but was apprehensive of
the coming days. Then the first truckload arrived. It was 4.30 a.m. and
another day had begun.1
1
This is based on a note prepared by Rajiv Topno describing his experiences on the day
of the earthquake.
13
The Kutch Earthquake 2001
14
Some Recollections
from a fellow officer of the municipal corporation informing him that two
buildings had collapsed right in front of his house. He took the required
equipment with him, including two new rescue vehicles which had been
recently procured. There were many calls the whole day.
In the evening they were called to help demolish the Shradha apartment
building. They realized that the search operation here had not been effective.
Since the ceiling of the second floor was just two feet above the ground,
they were able to dig only a small hole. Searching further, they retrieved
the body of a boy crushed between concrete structures. After removing
the body, they heard the groan of his mother. One rescuer sat inside a
small hole, used a rocking hammer and cut open five beams under the
concrete structure, which took 10 hours. The operation had started at 8
p.m. and continued till the woman was rescued at 6 a.m. the next day. At
the hospital, three of her limbs had to be amputated; she survived for just
a week.
15
The Kutch Earthquake 2001
hours during the night. He returned to Delhi the next day for the meeting
of the NCMC and gave them a first-hand account of the situation in Kutch.
It was the first time a clear picture of the disaster, its enormity and severity,
had been reported.
16
III The Aftermath
17
The Kutch Earthquake 2001
18
The Aftermath
19
The Kutch Earthquake 2001
present. He made an appeal to the citizens, who were worried about the
aftershocks, to maintain calm. All the government employees were asked
to immediately report for duty, even though the next two days, Saturday
and Sunday, were holidays.
In the morning of 27 January, L.N.S. Mukundan, Chief Secretary
carefully reviewed the situation. A senior officer who was visiting Kutch
on the day of the earthquake, had returned and provided a detailed
description of the magnitude of the devastation. More information about
death and destruction also poured in.
The state government offices remained open on both Saturday and
Sunday (27 and 28 January 2001). The Secretariat remained open and many
employees were present. Those from the affected areas of Ahmedabad
could not come. However, there was a sense of fear among those who
attended office. Many of them were seen moving outside the building,
where they felt safer.
Messages came from New Delhi about the arrival of rescue and relief
teams from different countries. Arrangements were to be made for a
large number of flights, which would land at Ahmedabad and Bhuj. Many
members of the rescue and relief teams from overseas had no time to
obtain visas. The necessary formalities were completed in coordination
with the relevant government agencies.
20
The Aftermath
21
Damaged and collapsed apartments of Mansi Towers, Ahmedabad
The Kutch Earthquake 2001
22
The Aftermath
23
Rescue of people at Maninagar, Ahmedabad
The Kutch Earthquake 2001
was to cut concrete slabs and remove the debris, taking care to see that
those trapped below were not harmed. This required tremendous patience
and caution. About 270 dead bodies were retrieved from the debris during
this first week. In addition to the buildings which had collapsed, a number
of buildings which were declared dangerous to the public had to be pulled
down.
All the three major hospitals, viz. Sheth Vadilal Sarabhai General
Hospital, Sheth L.G. Municipal Hospital and Smt S.C.L. Municipal General
Hospital, treated numerous patients. Similarly, the government-run civil
hospital received a large number of patients.
Most of the residents, especially those in low-rise and high-rise
buildings, were traumatized by the disaster. Many of the families preferred
to sleep outside: on the lawns, in cars, with relatives and friends, and even
on the roads. In order to alleviate their sufferings, officials of the Collectorate
arranged 172 night shelters which were run either fully by the government
or by NGOs. About 21,000 persons stayed in these shelters. In all, 248
night shelters were opened and over 30,000 persons took shelter in them.
The removal of debris continued to be a priority.
Meanwhile, officials of the AMC and AUDA commenced survey and
certification of buildings.
In all, 226 teams supervised by 30 deputy collectors were constituted
on 27 January to survey damage and distribute relief to the affected persons.
During the second and third day after the earthquake, the issue of
tackling dangerous structures and their demolition emerged. A meeting
was held by the Municipal Commissioner; Chairman, AUDA; and Collector,
Ahmedabad. They decided to pool the resources of experts from the Centre
for Environmental Planning and Technology (CEPT), L.D. Engineering
College, AMC and AUDA, to undertake a technical survey of the affected
buildings. Expert teams visited 84 buildings, out of which 69 were identified
as dangerous. These were demolished and 15 more buildings were
examined by structural engineers with equipment to assess their safety.
In the meantime, instructions were issued by the state government
that steps should be taken to inform people about the safety of their
buildings. On 29 January, a meeting was held with A.S. Arya, an
24
The Aftermath
25
Rescue work in Ahmedabad
The Kutch Earthquake 2001
26
The Aftermath
and the state-level officers who reached Bhuj within hours of the
earthquake, had to work in the open. They also spent the first two or
three nights outdoors. The office building of the district panchayat, which
is an important organization for development activities of the district,
collapsed. Since the DDOs residence was severely damaged, he had to
take shelter in a tent for weeks. The situation was similar for many other
district-level officers, including police officers, and those at sub-divisions
and talukas. In Anjar, the residential building of the sub-divisional officer
collapsed. He and his family members who had just come out of the
house to start for the Republic Day function, miraculously survived. Some
other officers such as Mamlatdar, Anjar, were not so lucky. He died while
travelling to the parade ground.
The district hospital at Bhuj, a 281-bed facility, was completely
destroyed. It functioned as a referral hospital in the district, offering medical
services such as surgery, gynaecology, paediatrics and orthopaedics. With
the collapse of the building, 193 people, including 11 staff members, died.
Located in the same premises were a nursing school and its hospital, an
auxiliary nurse and midwife training school, district tuberculosis hospital,
a mental hospital and staff quarters, all of which were destroyed or suffered
major damage. With such devastation, the immediate task was to arrange
for the treatment of orthopaedic and spinal injury cases. The military
hospital at Bhuj provided emergency care round the clock and carried out
about 3,000 major and 6,000 minor operations. It provided medical
treatment to 12,254 patients.
The medical services provided at the makeshift hospital that was set
up in Jubilee Ground in Bhuj were basically life-saving measures. After
initial treatment, patients were shifted to hospitals outside Kutch, and even
outside Gujarat. About 450 patients were airlifted to other places.
Initially, there was a shortage of wood required for cremation in Bhuj
and other areas. At many places one could see volunteers cremating dead
bodies after extricating them from the debris. The scene was similar at
places such as Bhachau, Anjar and Rapar. Hospitals were becoming over-
crowded and cremation grounds working day and night.
A large number of government employees were among the people
who were traumatized by personal loss. Many had lost their near and dear
27
28
The Kutch Earthquake 2001
ones. Their homes were also damaged. These reasons affected the ability
of the administration to undertake immediate rescue and relief work.
There are also numerous examples of government employees who
showed exemplary dedication, courage and commitment. In spite of
personal tragedy, they continued to perform their duties and undertake
rescue and relief activities. A sub-divisional officer in Surendranagar district
continued to perform his duties for several hours even after he had come
to know that his father and his only son had died due to collapse of a
building in Ahmedabad.
A number of police stations in Kutch were devastated. Police officers
also suffered loss and damage. Yet they played an important role. The
local police, with the help of citizens, rescued hundreds of people who
were trapped. It was the local police, led by the Additional Superintendent
of Police, who were the first to enter the walled city of Bhuj to extract
bodies from the debris during the first few hours of the tragedy. At Khavda
village, the local police inspector cordoned the children at the parade ground,
thereby preventing them from running into the falling debris. Later, he led
the rescue operation in other parts of the village thereby minimizing injuries
and casualties. The police sub-inspector at Adhoi left his family under the
debris at the police line and went to the village to rescue people. The
police sub-inspector at Bhachau witnessed the death of his inspector and
barely managed to save his own life by breaking open the window of the
vehicle that he was trapped in. He remained continuously on duty for
several hours. There were other such cases where officials under severe
stress and adverse circumstances performed their duty admirably.
Army personnel stationed at Bhuj and Gandhidham quickly geared
themselves to provide assistance to the civilian population. Within 45
minutes of the disaster, the two army units sent out 14 and six columns
respectively. On the first day, the army rescued 110 people and recovered
116 dead bodies at Bhuj. Similarly, it rescued 108 people and recovered
58 dead bodies in Gandhidham. The military hospital, being the only well-
equipped hospital in Bhuj and adjoining areas, treated thousands of civilians.
That included 155 operations on the first day itself. The Army Commander,
Southern Command flew in from Pune, along with four surgical units.
Having assessed the situation, additional medical personnel, equipment
29
30
The Kutch Earthquake 2001
and infantry units were moved to Kutch for providing relief. The army
restored arterial road communications of major towns and villages.2
The team of 30 doctors from AIIMS and Safdarjung hospital, New
Delhi arrived in Bhuj on the night of 26 January 2001. During the next few
days a large number of doctors also arrived from many parts of the country.
Many came without equipment. The doctors faced difficulties regarding
their food and accommodation. Subsequently, it was realized that though
there was no dearth of doctors, there was a shortage of paramedics and
surgical instruments. An important lesson learned here is that teams of
doctors who arrive in disaster-struck areas should come well equipped
with paramedical staff, equipment and food.
There were medical teams from France, Japan, Norway, Finland and
Korea. The International Red Cross Society set up a hospital which
functioned as a substitute to the destroyed district hospital. The Israel
team also set up a field hospital at Bhuj. The medical team from Denmark
established a hospital at Gandhidham. Similarly, a hospital was set up by
Ukraine at Bhachau. Japanese medical units were operating from Madhapar
and Kukma (Table 1). It may be noted that the international teams took a
few days to set up hospitals, by which time many of the patients had been
shifted to other places. Furthermore, it was difficult for the foreign doctors
to communicate with the patients because of language problems. It is
necessary to strengthen the local emergency medical system so as to
provide immediate relief services.
Number Remarks
350-bed hospital Red Cross & Red Crescent Societies of Norway,
Finland & Germany
70-bed hospital Israel
2 field hospitals France
2 hospitals By Ukrain in Bhachau, Denmark in Gandhidham
80-bed hospital In Bhuj by the state govt and the Indian Medical Association
2
These details are from a report prepared by L. Mansingh, Chief Coordinator of Relief
Operations, Kutch.
31
The Kutch Earthquake 2001
32
The Aftermath
State-level Response
33
The Kutch Earthquake 2001
in cities such as Ahmedabad and in remote areas like Kutch and Jamnagar.
Hundreds of villages and towns had been devastated by the earthquake.
Every site required cranes and earth-moving equipment. These were
mobilized from government departments such as the irrigation department,
roads and buildings department, Sardar Sarovar Narmada Nigam and the
Gujarat State Land Development Corporation (GSLDC). Various industrial
houses also mobilized equipment. Even the neighbouring states of Rajasthan
and Maharashtra sent equipment.
The requirement of personnel, technical and non-technical, was
massive. It was necessary to deploy a large number of doctors and
paramedical staff.
Tables 2, 3, 4 and 5 indicate the mobilization of personnel and equipment
during the first few days of the tragedy.
Personnel Number
Technical 2,104
Non-technical 6,213
Unskilled 13,355
From the above tables, one can gauge the magnitude of the task.
Mobilizing and transporting such a large number of heavy equipment to the
affected areas, which were widespread, posed a complex problem of logistics.
34
Table 4: Mobilization of buses for rescue and relief work
During the first few days, 107 administrative officers, 11,000 other
staff, 3,000 police personnel and 2,500 Home Guards were deployed.
The armed forces organized large-scale rescue efforts, including eight
engineering regiments, 36 columns, 48 IAF aircrafts/helicopters and 953
sorties. The Border Security Force (BSF), the CRPF and RAF participated
in a big way. Over 5,000 trucks, cranes, bulldozers and gas cutters etc.,
were mobilized for the rescue efforts.
Within two days of the earthquake, Kutch, which was the worst-
affected district, had 450 medical teams including 245 in rural areas. The
teams consisted of about 200 specialists, 450 doctors, 785 paramedics
and 81 ambulances.
In order to prevent the outbreak of epidemics, an elaborate system of
surveillance was instituted throughout the affected area. Expert teams
from the National Institute of Communicable Diseases (NICD) prescribed
preventive measures.
The water system was monitored for its chlorine level and the presence
of bacteria, to prevent water-born diseases. Medical experts from the
35
36
The Kutch Earthquake 2001
The Gujarat Electricity Board (GEB) deployed 220 engineers and skilled
staff in the affected areas for restoration of the power supply. By 5 February
2001, i.e., 10 days after the earthquake, 80 per cent of the services were
restored. By the end of that month, services had been completely restored.
The immediate need was to restore the water supply. Measures were
taken to supply water through tankers and repair of pipelines immediately.
Table 7 indicates the position of restoration of the water supply to towns
and villages as on 19 February 2001.
37
The Kutch Earthquake 2001
38
The Aftermath
39
Relief materials at Bhachau
The Kutch Earthquake 2001
40
The Aftermath
41
Rescue activity by army jawans at Bhuj
The Kutch Earthquake 2001
42
The Aftermath
43
44
CMYK
CMYK
The Kutch Earthquake 2001
45
The Kutch Earthquake 2001
46
The Aftermath
Country Manpower
Bulgaria 137 persons and trauma kits
Denmark Medical team
France 32 persons, 9 dogs and equipment
Germany 30 persons and 6 dogs
Hungary 52 persons and one dog
Israel 100 persons and equipment
Italy/Spain 11 persons and 10 dogs
Japan 58 persons
Mexico 6 persons including one doctor and paramedics
Netherlands Doctors with medical equipment
Poland 15 persons including 10 firemen and 2 doctors
Russia 76 persons and equipment
South Africa 31 persons, 2 dogs and equipment
South Korea 36 persons (including 23 doctors) and medical supplies
Switzerland 52 persons and 12 dogs
Turkey 27 persons and equipment
UK 75 persons, 1 dog and equipment
Ukraine Team with mobile hospital
USA 10 persons
Source: Report of UNDAC Team and Government of Gujarat (Revenue
Department) presentation.
47
48
The Kutch Earthquake 2001
49
The Kutch Earthquake 2001
50
The Aftermath
51
52
The Kutch Earthquake 2001
Note: The talukas with asterisks were upgraded to districts and officers of the rank of
additional collector and additional district development officer were appointed.
From the very first day there was tremendous demand from all quarters
including the media, for data on the death and damage. All sorts of figures
appeared in the press. During the first two days it was felt even by senior
officials that the number of dead could be as high as 60,000. Reports of 8,
10 and 12 February 2001 of the state government indicated figures of
16,487, 16,755 and 18,603 respectively. By the end of February and the
middle of March, the figures given were 20,447 and 20,005 respectively.
A report by UNDAC dated February 20, gives a figure of 30,000. In fact,
on the first or second day after the earthquake the then Union Defence
Minister gave a statement that the death figures could be to the extent of
100,000 people.
53
54
The Kutch Earthquake 2001
55
Search in ruins (a village in Kutch)
The Kutch Earthquake 2001
For a long time, the death figures remained about 20,000, based on
the records of the police stations and hospitals. Subsequently, however,
detailed verifications were undertaken. It was discovered that there were
many overlaps as well as duplication of figures. The state government
constituted a committee of senior officers to have the figures verified.
Finally, the death figure, based on the committees report of 7 December
2001, was given as 13,805: including 3,743 men, 5,184 women and 4,878
children. District-wise details of the death toll are given in Table 12.
The Kutch district accounted for about 88 per cent of the deaths. The
number of people injured was estimated to be about 167,000.
Schools remained closed for about a month. A total of 31 teachers
died and 95 were injured. There were 971 students who died (910 from
primary schools, 37 from secondary schools, three from colleges and 21
from technical institutions); 1,051 others were injured.
56
The Aftermath
A site of liquifaction
57
The Kutch Earthquake 2001
The incidence of death and injury to students would have been much
greater had the earthquake occurred on a working day. As it was 26
January, many students were in open areas for the Republic Day
programmes or at home. In Anjar, about 300 children were marching
along a street as part of the Republic Day procession. They met with a
tragic end when buildings collapsed from both sides of the narrow lane.
Initially, the number of houses which had collapsed and which had
been damaged were estimated to be 2.69 lakhs and 5.44 lakhs respectively.
As time passed, there was an increase, based on the verification of these
numbers. Furthermore, some of the buildings which had earlier been
indicated as residential were actually commercial premises. The number
of residential premises which needed to be reconstructed thus reduced,
with verification and refinement from time to time (Table 13).
Fully
collapsed
houses
(lakhs) 2.68 3.30 3.71 2.38 2.45 2.15
Damaged
houses
(lakhs) 5.44 6.00 9.23 10.16 10.44 9.28
58
The Aftermath
The epicentre was located at 23.40 degrees north latitude and 70.28
degrees east longitude, with a focal depth of 25 km (according to some,
18 km). Initially the IMD had identified the epicenter to be near the village
of Lodai, about 20 km north-east of Bhuj (23.6 degrees north and 69.8
degrees east). Subsequently, it was located near the village of Chaubari,
about 65 km to the east of Bhuj and 20 km to the north of Bhachau.
In short, the Kutch earthquake occurred at 8.46 a.m. on 26 January
2001. The magnitude was 7.7 Mw. It lasted for about two minutes. The
epicenter was at Chaubari located to the north of Bhachau in the Kutch
district of Gujarat, at a distance of about 250 km west of Ahmedabad.
During the first fortnight after the earthquake there were two major
aftershocks of magnitudes of 5.9 and 5.3. There were, of course, many
aftershocks during the first three years: 953, 149 and 53 respectively
during 2001, 2002 and 2003 (Table 14).
A number of major earthquakes have occurred in India in the past.
Some of these are listed in Table 15 with a view to providing a perspective
to judge the severity of the Kutch earthquake of 2001.
1 2001 953
2 2002 149
3 2003 53
Total 1,155
59
The Kutch Earthquake 2001
60
The Aftermath
61
62
The Kutch Earthquake 2001
Collapsed newly constructed bus stand at Vondh village close to the epicentre of the earthquake
The Aftermath
Year MMI/Magnitude
1819 IX/8.3
1845 VIII/6.3
1903 VII/6.0
1956 IX/7.0
64
The Aftermath
65
A view of the damage at Chirai village
The Kutch Earthquake 2001
Media Perceptions
66
The Aftermath
67
The Kutch Earthquake 2001
" The supporting fire-fighting teams drawn from various parts of the
country had only one communication frequency which caused a
bottleneck in rescue operations.
It is interesting to look at two other observations by the same author:
The two ambulances of Hyogo Fire station were in full operation
for a whole day to transport the injured citizens to the hospitals.
Communication became overcharged and the ambulance phone system
was down so there was no advance notice to hospitals of incoming
injuries. Emergency teams found it hard to return to the fire station
because roads were congested and disorderly. It took much more
time to return (Yoshimoto, 2002, p. 56).
Rescue workers of other prefectures came every day to Kobe to
support our efforts. It might be possible for doctors, if only for
consultations officially, to accompany rescue staff on the ambulance.
The Great Hanshin-Awaji Earthquake apparently caught everyone off
guard. It seems no municipality made requests for doctors to ride
emergency vehicles with rescue team even though there is a project
that fire departments dispatch doctors in its helicopters in its emergency
medical procedures in the event of the earthquake. The vulnerability
in our emergency medical operation is attributable to poor lateral linkage
in addition to Japanese bureaucratic sectionalism between fire and
medical organizations (ibid., p. 62).
In the same book, Takashi Shintani, an instructor in the Hyogo Fire
Station, describes his experiences on the day of the earthquake. He
concludes:
My brain no longer functioned properly. Such was January 17 to
me. The thoughts that developed in my mind during the aftermath of
the earthquake are countless. I regret that I didnt do more and do it
better. Yet, as I look back we, the fire fighters, were powerless. What
we needed the most was water and that was beyond our control. I
feel deeply disappointed and shamed. We did all we could do. All the
fire fighters did their best (Yoshimoto 2002, p. 54).
Many people must have felt the same way in the context of the Kutch
earthquakeas well as of the Marmara (Turkey) and Chi-Chi (Taiwan)
earthquakes.
68
IV Assessment of Damage and
Immediate Needs
69
The Kutch Earthquake 2001
Ahmedabad. There was panic among the residents of even those buildings
which were not damaged or had suffered minor damage. Further, even
reputed professionals were not very familiar with seismic engineering
aspects.
During the first three or four days, local engineersparticularly those
associated with the Gujarat Institute of Civil Engineers and Architects
(GICEA)inspected many buildings and tried to classify them. Two
structural engineers from Hyderabad came to Ahmedabad and made
available some guidelines and booklets. In course of time, many other
experts arrived. The state government also obtained some guidelines from
Government of India organizations. Some pamphlets were prepared and
circulated.
A.S. Arya, Professor Emeritus, Indian Institute of Technology (IIT),
Roorkee and a number of other experts came to Ahmedabad. They were
earlier associated with the classification of damage in the context of the
Latur earthquake. In the case of Latur, most of the damaged buildings
were made of stone masonry. The damage classification ranged from G0
to G5. G0 stands for no damage and G5 for collapsed buildings. This
classification was modified for Gujarat by an expert group under the
chairmanship of A.S. Arya with a view to including RCC frame buildings,
load-bearing masonry buildings and load-bearing wooden frame buildings.
In Ahmedabad, CEPT was requested to carry out a damage assessment
survey for multi-storeyed residential buildings. As the organization did not
have the adequate number of personnel for the surveys, it appealed to
structural engineers from other parts of India to volunteer their services.
About 160 structural engineers from various parts of the country including
Gujarat, participated. In addition, about 80 postgraduate/final year
undergraduate students of engineering colleges in Gujarat and 30 junior
engineers participated in this project. Each damage survey team consisted
of a senior structural engineer, a junior engineer (who could be a senior
engineering student), one cameraman and one representative of the local
authority. Each team was provided with a vehicle and a driver. The survey
work continued for about three months and 5,887 buildings were surveyed.
Based on the damage survey, the senior engineer of the team would submit
a report with his recommendation to the CEPT. A group of engineers
70
Assessment of Damage and Immediate Needs
from CEPT would scrutinize the report and finalize the category of damage.
Buildings other than those surveyed by CEPT were surveyed by the teams
deployed by the Revenue Department. They surveyed 20,160 buildings.
Another important aspect was short-term repair and retrofitting of
buildings which were damaged. In many cases, such repairs were
undertaken with the help of local architects and engineers. The GICEA in
Ahmedabad issued some guidelines on repairing and strengthening of
buildings. These measures did not effectively incorporate a scientific
approach to retrofitting. About two months after the earthquake, the AMC
organized a meeting of structural engineers from Ahmedabad and outside
the state, and finalized some guidelines for retrofitting of structures.
However, much remains to be done on this aspect because detailed
guidelines, based on local conditions and sound technical knowledge, need
to be formulated.
Assessment of damage in rural areas was an extremely difficult task.
Thousands of villages were affected. It was necessary to complete the
assessment of damage for a large number of houses within a short time.
Teams were formed, each consisting of three members: an engineer, a
revenue/panchayat official and a representative of an NGO/social worker.
It was necessary to mobilize both technical and non-technical officials,
on a large scale. Departments such as Roads and Buildings, Irrigation and
Sardar Sarovar Narmada Nigam Ltd., which together account for most
of the technical personnel in the government sector, had to play a crucial
role.
For the purpose of damage assessment 2,051 teams comprising 2,932
technical people, 1,794 revenue officers and 2,798 others, were constituted.
All of them had to be properly briefed and oriented for the complex task.
It was also necessary to have uniformity in approach and methodology
when such a large number of teams undertook the work in different areas.
Detailed formats were prepared for the purpose of damage assessment.
Guidelines were issued for detailed documentation.
Based on their visits and assessment, the teams classified houses and
other structures into five categoriesG-1 to G-5. Broadly, the following
criteria were adopted:
71
The Kutch Earthquake 2001
Damage Classification
Minor cracks up to inch width G-1
Upto 10% G-2
Upto 25% G-3
Upto 50% G-4
Total damage G-5
72
Assessment of Damage and Immediate Needs
73
The Kutch Earthquake 2001
Housing
A preliminary assessment by the Joint Assessment Team on 23
February 2001, indicated that about 400,000 dwelling units collapsed and
about 500,000 were partially damaged. A subsequent estimate by the
Government of Gujarat put the partially-damaged houses at 800,000. The
figures were refined from time to time. It was found that a number of
commercial premises had initially been counted as dwelling units. There
were also changes in the category on account of the re-survey of structures
in many cases. The latest numbers of collapsed and damaged dwelling
units are 215,255 and 928,369 respectively.
It was estimated that the losses due to damage and destruction of
houses including the value of household goods would be to the extent of
Rs 5,166 crores (US $ 1.1 billion). According to an estimate by the
Government of Gujarat, it was Rs 10,000 crores. The cost of reconstruction
was estimated to be Rs 5,148 crores. The Joint Assessment Team also
drew the attention to additional impacts in the form of high social costs of
homelessness, psychological trauma, poor health and loss of earning.
The immediate steps which were required in the context of widespread
damage to housing included:
" careful and transparent damage assessment;
" provision of temporary shelters;
" debris removal;
" consultation with the people to decide whether they will reconstruct
in-situ or relocate themselves; and
" arrangements for the appropriate construction of hazard-resistant
houses.
Health
There was extensive damage to health infrastructure. Two district
hospitals (at Bhuj and Gandhidham), 21 Community Health Centres (CHCs),
74
Assessment of Damage and Immediate Needs
75
The Kutch Earthquake 2001
Education
1) Primary education
School buildings 9593
Teacher training institutes 42
2) Kitchens for midday meal programme 1871
3) Secondary/higher secondary education
Government schools 127
Grant-in-aid schools 1913
4) Higher education
(universities & colleges) 47
5) Technical education
(polytechnics & engineering colleges) 58
There are many small and medium earthen dams and reservoirs in
Kutch and Saurashtra, which are arid zones with low rainfall. These dams
and reservoirs facilitate storage and availability of water for the purpose
of drinking and, to some extent, irrigation. There are 20 medium irrigation
schemes and 165 minor irrigation schemes in Kutch. There was widespread
76
Assessment of Damage and Immediate Needs
77
The Kutch Earthquake 2001
and extensive damage to earthen dams. In most cases there was cracking
and displacement of the upstream sides of the dam slopes. Of 20 medium
dams, 16 suffered damage, out of which five were severely damaged.
Similarly, 80 out of 165 minor dams were damaged, out of which 14 were
severely damaged. In the Saurashtra area, 61 dams suffered minor to
moderate damage.
It was necessary to identify the dams which had become unsafe for
impounding water, so as to undertake urgent repair before the monsoon
(June-July 2001). The repair of other dams was also necessary in order
to ensure the supply of drinking water. This work was undertaken on an
urgent basis. The total cost of the damages was estimated to be Rs 186
crores. In order to repair and strengthen the dams and make them
earthquake resistant it was estimated that an amount of Rs 419 crores
would be required.4
78
Assessment of Damage and Immediate Needs
Municipal infrastructure
79
The Kutch Earthquake 2001
Museum at Bhuj
80
Assessment of Damage and Immediate Needs
Administrative 10 122
Residential 1,257 4,932
81
The Kutch Earthquake 2001
There are many heritage buildings used for public purposes such as
schools, hospitals, administrative buildings, museums, rest houses, police
stations and officers bungalows. There were about 3,000 such
administrative buildings, out of which 954 were damaged and 194 were
destroyed. As regards residential quarters, about 1,000 were damaged
and 250 were destroyed. Some examples of such public buildings are the
Jubilee Hospital at Bhuj, the Deputy Collectors office at Anjar, Rapar
police station and the Collectors residence at Bhuj.
In addition to the above categories, there are a large number of
monuments which are unprotected and unrecognized, most of which are
privately owned. Reliable data on such monuments are not available.
According to an estimate by INTACH, at least 10,000 such buildings and
sites, which include palaces, old havelis, wells, chhattries, places of religious
significance, clock towers, gateways, and pavilions, located in 250 towns
and many villages, were affected by the earthquake. Some important ones
are the Darbargarh of Kutch, Aina Mahal, Prag Mahal, the Vegetable Market,
Taksal Mosque and Rudrani temple in Bhuj, and the Green Tower, Ram
Malhol temple, Morvi Palace, Pratap Vilas and Sai School in Jamnagar.
According to the WB and ADB joint assessment report, out of the
329 monuments protected by the Government of Gujarat, 33 suffered
major damage and a 100 suffered some damage such as major and minor
cracks. Many unprotected historic buildings and monuments had been
damaged or destroyed.
Power
The earthquake caused extensive damage to the power supply facilities
in Kutch and other districts such as Banaskanta, Jamnagar, Rajkot and
Surendranagar. Some power stations sustained minor losses, but
transmission and distribution systems suffered severe damages.
The Kutch Lignite Thermal Power Station at Panandro in Kutch district
sustained some minor damage. The building for the Diesel Generator (DG)
set at Bhuj was also damaged. Cracks developed in the Sikka Thermal
Power Station building, damaging equipment and overhead tanks. There
was also some damage at the Dhuvaran Thermal Power Station.
82
Assessment of Damage and Immediate Needs
Transport infrastructure
Transport infrastructure includes roads, bridges, rail, port and airport
infrastructure. The transport sector suffered relatively less, compared to
the other sectors.
In the road sector, maximum damage was caused to bridges and
culverts. The old Surajbari bridge, which had been constructed in the
1960s, suffered significant damage during the earthquake. The bridge
was closed to traffic for the first two days. It was temporarily restored
for slow and single-lane traffic. Five weeks after the earthquake, the New
Surajbari bridge was commissioned.
The railway infrastructure suffered relatively minor destruction. Most
of the damage was to buildings stations and staff quarterswith some
minor damage to structures and signaling infrastructure. Rail links which
had been discontinued were restored quickly.
With regard to ports, there was significant damage to the Kandla port.
Five of the 10 dry cargo jetties developed major cracks. The oil jetty and
a small wharf were damaged. Some mechanical and electrical equipment
were also damaged. Twelve of the 40 ports managed by the Gujarat
Maritime Board were damaged; the Navlakhi port was the most affected.
Most of the marine structures, cargo handling equipment, storage facilities,
residential/office buildings, roads, bridges, etc., were destroyed.
83
The Kutch Earthquake 2001
Highway to Bhuj
84
Assessment of Damage and Immediate Needs
85
A disrupted rail track in Navalakhi port area
The Kutch Earthquake 2001
86
Assessment of Damage and Immediate Needs
The airport at Bhuj suffered some damage to the runway and major
destruction to the old terminal building. However, there was already a
new terminal building under construction, which was made operational in
September 2003. There was some damage to the terminal building at the
airport at Kandla and very minor damage to other airports such as those at
Rajkot and Porbandar.
The damage to the transport sector was assessed at about Rs 233
crores for roads; Rs 79 crores for railways; Rs 198 crores for ports; and
Rs 19 crores for airports.
Telecommunication
There was extensive damage to the telecommunication system. About
80,000 lines were out of commission due to the collapse of telephone
exchange buildings. In Bhuj, Jamnagar, Rajkot and Surendranagar, 179
exchange buildings and 146 staff quarters were destroyed. The amount
of damage to telecommunication facilities was estimated to be Rs 51 crores.
The total reconstruction cost was estimated at Rs 121 crores.
Extensive damage to telecom buildings affected the communication
system. The exchanges at Bhachau, Khavda, Nakhatrana and Rapar were
set up in tents. In Nakhatrana and Rapar, facilities were restored in the
original buildings after the main exchange was restored. Due to the severe
damage to the original buildings, two exchanges were set up in tents, 10
exchanges in other locations and eight exchanges were set up in nearby
buildings.
87
88
The Kutch Earthquake 2001
Service sector
The five most affected districts, namely, Kutch, Rajkot, Jamnagar,
Patan and Surendranagar, have a large number of commercial and trade
establishments. They include wholesale and retail shops, restaurants and
hotels. There are large shopping areas in Gandhidham. All these
establishments were damaged. The total losses were estimated at Rs 1,163
crore. The output loss was estimated at Rs 1,748 crore.
5
A later estimate by the Government of Gujarat indicates that in 19 districts 9736 small
industrial units and 125 medium/large industries were affected, the estimated damage
being Rs. 406 crores and Rs. 314 crores respectively.
89
The Kutch Earthquake 2001
90
Assessment of Damage and Immediate Needs
91
The Kutch Earthquake 2001
Table 19: Sector-wise asset losses and reconstruction costs (Rs Crore)
92
Assessment of Damage and Immediate Needs
93
The Kutch Earthquake 2001
Shelter
Gradually, the issue of interim shelter and reconstruction of houses
was brought up. People cannot live in tents for a very long time. It was
necessary to provide interim shelters till permanent houses were
constructed. Many alternatives were explored. Presentations, even to the
State Cabinet, were made by experts and specialized agencies.
For the purpose of interim accommodation, land was identified at
Bhuj and infrastructure such as road, water supply and electricity were
provided. Similar sites were identified at Bhachau and Anjar. Those who
did not like the sites identified, were given other options for interim
accommodation. Some people opted for galvanized iron sheets, some for
cash assistance and others for rented premises. The Government of Gujarat
provided assistance in the form of materials and cash to about 218,000
families. NGOs supplemented the efforts by providing interim shelter to
about 7,000 families.
A few weeks later, the issue of permanent shelter and reconstruction
programmes came to the fore. On the one hand, experts advised that the
policy of housing and the overall reconstruction should be analysed in
94
Transition from Relief to Recovery
depth before a final policy was announced. On the other hand, there was
tremendous pressure from the people and the media asking the government
to announce its policy of assistance for reconstruction. Housing packages
or schemes were to be conceptualized and finalized. A task force was
constituted to formulate schemes for reconstruction of houses on 7
February 2001. K.V. Bhanujan, a retired IAS officer with prior experience
in disaster management, was appointed chairman of this task force. Other
members were principal secretaries of departments such as health,
revenue, urban development, finance and roads and buildings.
During the immediate aftermath of the disaster, numerous meetings
were held and many hours of discussion took place. The Chief Minister
of Gujarat and senior cabinet ministers participated in all those
deliberations.
The above-mentioned task force analysed various aspects of
rehabilitation and reconstruction and prepared some schemes for housing.
The schemes were examined by the GSDMA, which forwarded the
schemes for the issuance of a government order. On 23 February 2001,
four government resolutions were issued sanctioning packages or schemes
1, 2, 3, 4-A and 4-B. Subsequently, another government resolution was
issued on 24 April 2001, announcing a fifth package for the four towns of
Bhuj, Bhachau, Anjar and Rapar. Thus, five schemes were announced in
less than a month of the earthquake and another housing scheme, within
three months.
Package 1 is meant for villages with more than 70 per cent of structures
damaged. Such villages could be relocated with the consent of the villagers.
For this purpose, the Gram Sabha or the Village Council would pass a
resolution. Different categories of households such as landless labourers,
marginal farmers, small farmers and other farmers are entitled to plots of
different sizes and construction areas (Table 21). The state government
assistance covers the cost of construction of houses (@ Rs 2,400 per sq.
mt), cost of land acquisition and cost of primary infrastructure. It was
estimated that the cost of setting up a village of 200 families would be
about Rs 3 crores.
95
The Kutch Earthquake 2001
1. Landless agricultural
labourers 100 30
2. Marginal farmers (up
to 1 hectare landholding) 150 40
3. Small farmers (between 1
to 4 hectares landholding),
small traders, artisans
and others 250 40
4. Farmers with more than
4 hectares landholding 400 50
96
Transition from Relief to Recovery
Destroyed/partially-damaged houses:
3. If there are cracks of at least 1/2 inch width Up to Rs 2,000
4. For repair of damage up to 10% Up to Rs 5,000
5. For repair of damage up to 25% Up to Rs 10,000
6. For repair of damage up to 50% Up to Rs 20,000
7. Completely damaged kachcha/pucca houses Up to Rs 40,000
97
The Kutch Earthquake 2001
Table 21.5. For this purpose, low-rise buildings are those up to ground
plus three storeys or open ground storey plus four storeys with a building
height limitation of 15 m.
98
Transition from Relief to Recovery
Package 5 is for the four towns of Kutch: Bhuj, Anjar, Bhachau and
Rapar. In these towns construction of buildings with a maximum height
of up to ground plus two storeys are permitted. For load-bearing
construction, the assistance is as per Table 21.7 below:
99
The Kutch Earthquake 2001
Removal of Debris
The removal of debris was a critical issue. In the beginning, some
amount of debris had to be removed in order to enable vehicles to move to
the affected areas for facilitating rescue operations. However, the
systematic removal of debris started only after a few days. Initially, people
did not want the debris to be removed. Many of them wanted to search
for their household goods and other belongings. They felt that they would
not be able to recover their belongings if debris were removed. A decision
was taken by the state government after a few days to take up debris
removal in a big way. This was necessary in order to bring about normalcy
and to prevent the outbreak of disease.
The Roads and Buildings Department undertook the clearance of debris
from Bhuj city and rural areas, with the assistance of the Army, the Gujarat
Mineral Development Corporation (GMDC), Surat Municipal Corporation
and the Gujarat Ship Breaking Association. The Irrigation Department
was given the responsibility of the debris removal work in Bhachau taluka.
During this operation, the Government of Maharashtra, the Bombay
Municipal Corporation, the ONGC, Sardar Sarovar Narmada Nigam
Limited (SSNNL) and Army units collaborated by providing equipment
and personnel. In Anjar city, the work was undertaken by Reliance
Industries, SSNNL and private contractors. The Kandla Port Trust took
up debris clearance work in the Gandhidham area. It engaged some private
contractors also for this purpose. In Rapar taluka the Irrigation Department,
the GMDC, the Roads and Building Department and the Government of
Haryana took up the clearance of debris in various areas.
Thus, the work of removal of debris was undertaken through many
agencies. In the first phase, the work was completed in respect of roads
and public places. Some debris remained in the interior areas of cities,
especially of Bhuj because there were narrow lanes and no vehicle could
pass through them. The work had to be done manually. As people
commenced repair work and tried to replace some parts of the damaged
structures there was more debris. Some buildings which were dangerous
for public safety had to be pulled down by controlled demolition. Debris
was also lying in private premises, both in urban and rural areas.
100
Transition from Relief to Recovery
In the rural areas, debris was removed through drought relief work
particularly in the villages of Kutch. For this purpose, a daily wage of
Rs 40 was paid per person, in addition to the reimbursement of expenditure
on tractor trolleys used for removal of debris. Subsequently, in the month
of October 2001, it was found that debris was still lying in some villages.
A programme was initiated to remove debris through village-level
committees. A government resolution was issued to that effect.
It is estimated that about 109 lakh MT of debris was removed by
various agencies as indicated in Table 22.
101
The Kutch Earthquake 2001
102
Transition from Relief to Recovery
103
The Kutch Earthquake 2001
104
Transition from Relief to Recovery
105
The Kutch Earthquake 2001
A. Housing
Rubble Removal 8.70 0.00 8.70
Temporary Shelters 77.60 0.00 77.60
Permanent Houses 1,162.20 634.56 1,796.76
Total Housing 1,248.50 634.56 1,883.06
C. Public Infrastructure
Education
i. Primary Education 0.00 3.05 3.05
ii. Technical Education 0.77 64.79 65.56
iii.Municipal &
Corporation Schools 6.98 7.10 14.08
Total Education 7.75 74.93 82.69
Public Buildings
i. State R & B 22.90 176.58 199.48
ii. Panchayat 6.19 37.80 43.99
iii.Police Housing 0.24 34.34 34.58
iv.Other Buildings & Urban
Local Bodies 0.05 7.82 7.87
v. Seismological Institute,
GIDM & other Buildings 0.00 65.00 65.00
Total Public Buildings 29.38 321.54 350.92
Retrofitting
i. State R & B 0.00 120.05 120.05
ii. Panchayat 0.00 18.90 18.90
iii.Health Buildings & other
Public Infrastructure 0.00 63.50 63.50
Total Retrofitting 0.00 202.45 202.45
Contd
106
Transition from Relief to Recovery
Contd
Roads and Bridges 75.64 373.18 448.82
TOTAL PUBLIC
INFRASTRUCTURE 132.49 1,198.80 1,331.29
E. Disaster Management
Capacity Building 5.40 240.00 245.40
Municipal Corporations
Jamnagar Municipal Corporation 2.03 0.60 2.63
Ahmedabad Municipal Corporation 28.40 8.48 36.88
Baroda Municipal Corporation 2.44 0.73 3.17
Rajkot Municipal Corporation 12.00 3.59 15.59
Municipal Corporations (Total) 44.87 13.40 58.27
Contd
107
The Kutch Earthquake 2001
Contd
AhmedabadUrban Development
Authority 48.37 14.45 62.82
108
Transition from Relief to Recovery
109
The Kutch Earthquake 2001
Health - 358.13
Education - 760.62
Contd
110
Transition from Relief to Recovery
Contd
Infrastructure Dam Safety and
Irrigation 348.63
Public Buildings
and Those of Other
Government Undertakings 331.74
Roads and Bridges 330.00
Retrofitting 84.34
Urban Infrastructure 604.50
Rural Infrastructure 418.50
Power 325.50
SUB TOTAL 2,443.21
Services 400.00
Social
Empowerment 250.00
Note: The above cost does not include that of the work done by NGOs.
111
The Kutch Earthquake 2001
113
The Kutch Earthquake 2001
The focus during the short, medium and long-term phases of the
GEERP included:
" Immediate needs such as temporary shelters before the onset of the
monsoon, debris removal, repair of houses, repair of public buildings
and emergency repair of irrigation structures.
" Repair and reconstruction work in the medium-term phase. There
was emphasis on reconstruction of houses, public infrastructure, social
infrastructure and initiating efforts towards disaster reduction and
mitigation.
" Further strengthening of capacity-building efforts towards disaster
reduction and mitigation, and implementation of a risk transfer
mechanism in the long-term phase.
Debris removal,
Short-Term Temporary Shelter,
Initiation of Repair/Reconstruction
Repair/Reconstruction
(Houses, Public Infrastructure, Social
Medium-Term Infrastructure)
Awareness Programs
Disaster Reduction & Mitigation
" For the small, medium and big industrial units located in seismic zones
IV and V, cash assistance at the rate of 60 per cent of the total
investment and up to a maximum of Rs 60 lakhs, working capital loan
from banks with no interest for two years, exemption from electricity
duty and from stamp duty.
114
Reconstruction and Rehabilitation Policy of the State Government
" A scheme was announced for salt-pan workers with benefits ranging
from Rs 3,000 to 5,000.
" Cabin owners and shop owners whose properties were damaged were
to be paid Rs 3,000 and 6,000 respectively.
" For cottage industries and artisans schemes for subsidy assistance to
self-employed persons at the rate of 60 per cent of loans and up to
Rs 2 lakhs, working capital assistance to handloom weavers at the
rate of Rs 10,000 per handloom weaver, revolving funds for providing
working capital etc., were announced.
" Work shed for artisans on a temporary basis and permanent work sheds.
" Handlooms, handicraft tools, and toolkits for artisans for restoration
of livelihood.
" No demand for recovery of loans to be made for two years in respect
of standard assets.
" As regards loans not classified as standard assets, no penalties to be
levied in the event of non-receipt of repayment during the next two
years.
" Loan up to a limit of Rs 1 lakh, at an interest rate not exceeding the
prime lending rate, to small traders, small business, self-employed
and small road-transporters for restoration of their business.
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The Kutch Earthquake 2001
The RBI advised the Dena Bank, which is the lead bank for Gujarat,
to convene the meeting of the State Level Bankers Committee every
month in order to monitor the implementation of the above relief measures.
" 100 per cent reduction allowed under the Income Tax Act, 1961,
in respect of contribution to the Gujarat Earthquake Rehabilitation
and Reconstruction Fund.
" 100 per cent reduction allowed in respect of the contribution
made by an income tax assessee to any trust/NGO/institution for
providing relief to the victims of the Gujarat earthquake.
" Exemption under the relevant provisions of the Income Tax Act, 1961,
given to NGOs and charitable trusts for receipt and utilization of
donations for providing relief to the earthquake victims.
" Organizations were given exemption from the provisions of the Foreign
116
Reconstruction and Rehabilitation Policy of the State Government
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The Kutch Earthquake 2001
Organizational Arrangements
As discussed earlier, the rehabilitation and reconstruction programme
is very comprehensive and holistic. It necessitated the involvement and
participation of a number of departments and agencies. This means there
is a need for an integrated and coordinated approach. The GSDMA was
thus set up as the coordinating agency. However, in view of the complexity
of the task, it became necessary to have the involvement of the highest
political executive. This was ensured through the Governing Body of the
GSDMA with the Chief Minister as Chairman. An operational manual was
prepared to expedite the process of sanction of works undertaken by
various departments.
In addition to government departments and agencies, a number of
expert institutions and individuals were associated. There were interactions
with national and international organizations. All these posed challenges
but also provided immense opportunities for organizational initiatives and
innovation.
A mechanism for coordination with NGOs was developed in the form
of a Public-Private Partnership Programme. An elaborate system of
peoples participation starting from the village level to the state level was
also put in place.
118
Reconstruction and Rehabilitation Policy of the State Government
119
The Kutch Earthquake 2001
Joint CEO
" Education /
Health Director Director Chief Director Director
" Urban Infra-
structure (Admn.) (Finance) Engineer (H&EC) (DM)
" World Bank / " Personnel /Cont. of " Procurement Long-term
" Housing
ADB Interface & Accounts Disaster
" Community Adminis " Road & Bridges " Emergency Mitigation &
Participation " Finance
tration " Dam Safety & " Communica- Preparedness
" Power " Accounts
" IEC Activity, " Society Irrigation tion &
Training " Public Buildings Networking
" NGO
" Disaster
Management Interface " Maintenance
" Rural Water of the GSDMA
Supply Office
" Livelihood
120
Reconstruction and Rehabilitation Policy of the State Government
The following are the main functions of the GSDMA in the context of
the programme:
" Develop approach, policy guidelines and action plans for meeting the
objectives of the programme;
" Obtain funds for rehabilitation and resettlement and to ensure optimum
utilization of these funds made available from national and international
agencies;
" Prepare programmes and plans to mitigate the impact of disasters as
a strategy for long-term disaster preparedness; and
" Overall coordination and monitoring with the implementing line
departments for the procurement of works, goods and services for
the specific components of the public sector infrastructure.
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The Kutch Earthquake 2001
State level
The Governing Body of the GSDMA, consisting of the Chief Minister
as the chairman and some senior ministers and secretaries as members, is
the apex body. It formulates policies and guidelines. A Central
Implementation Review Group (CIRG) under the chairmanship of the
Chief Secretary was also formed in order to monitor and facilitate
implementation. The CIRG includes experts from various fields as
members. A sub-committee under the chairmanship of the Chief Secretary
was set up in order to monitor components of the programme funded by
sources other than the WB and the ADB .
To enable the GSDMA to have expert advice and guidance from
prominent citizens and experts in various fields and to ensure accountability
and peoples participation, a state-level advisory committee was formed.
It was headed by Y.K. Alagh, an eminent economist, and included leading
persons in the fields of industry, finance, social services, administration
and management as members.
District level
At the district level, an executive committee under the chairmanship
of the District Collector implements, monitors and coordinates the
programme. An advisory committee consisting of officers and non-officials
was also formed in order to advise the district administration on various
aspects of the programme.
Taluka level
In the worst affected talukas, additional collectors and additional
DDOs, with the delegated powers of collectors and DDOs respectively,
were appointed with a view to speeding up the process of implementation.
122
Reconstruction and Rehabilitation Policy of the State Government
Village level
At the village level, a committee chaired by an officer not below the
rank of Deputy Mamlatdar monitors the implementation of the programme
and coordinates various activities. A village-level committee consisting of
non-officials and officials was also formed.
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124
Reconstruction and Rehabilitation Policy of the State Government
accelerate the process, so that by 26 January 2002, i.e., one year after the
earthquake, the progress would be significant. It was decided to assign
the task of monitoring the progress of some of the most affected talukas
to senior Secretaries to the state government. Eleven Secretaries were
asked to visit the respective talukas for three days, from Friday to Sunday
each week till the end of January 2002. Every Monday, the Chief Minister
used to hold review meetings with the Secretaries and others concerned.
Based on their field visits and suggestions, many issues of policy and
operation were resolved. This accelerated the process of reconstruction
and rehabilitation further.
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The Kutch Earthquake 2001
Housing
The reconstruction of houses is probably the most innovative aspect
of the Gujarat reconstruction programme. It has been a participatory
programme with an emphasis on multi-hazard resistant construction and
capacity building.
The basic approach is owner-driven reconstruction. People reconstruct
their houses themselves, with the assistance and facilitation of the
government. In addition, NGOs have undertaken construction of some
houses under the public-private partnership programme.
By the end of January 2004, 901,150 out of 928,369 houses were
repaired. Reconstruction of 186,967 out of 215,255 houses, i.e., 87 per
cent, was completed. Overall, 95 per cent of the repair and reconstruction
of houses was completed.
Houses which had not been completed were mostly in three towns of
Kutch, where it took some time to complete various surveys and town
planning. In some cases, house-owners living outside the state did not
start reconstruction work (Table 25).
126
Progress of Reconstruction and Rehabilitation Work
All Areas
Repair 928,369 901,150 27,219 97
Reconstruction 215,255 186,967 28,288 87
Total 1,143,624 1,088,117 55,507 95
Rural
Repair 715,373 689,699 25,674 96
Reconstruction 187,920 173,600 14,320 92
Total 903,293 863,299 39,994 96
Urban
Repair 212,996 211,451 1,545 99
Reconstruction 27,335 13,367 13,968 49
Total 240,331 224,818 15,513 94
Rural - Kutch
Repair 186,267 183,242 3,025 98
Reconstruction 107,440 107,105 335 100
Total 293,707 290,347 3,360 99
Urban - Kutch
Repair 52,016 51,602 414 99
Reconstruction 18,133 4,819 13,314 27
Total 70,149 56,421 13,728 80
* WIP means work in progress.
127
The Kutch Earthquake 2001
128
Progress of Reconstruction and Rehabilitation Work
750,000
500,000
250,000
-
Target Jan' Jan' Jan'
2002 2003 2004
142,856
150,000
100,000
59,781
50,000
-
Target Jan' Jan' Jan'
2002 2003 2004
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The Kutch Earthquake 2001
Education
The 42,678 classrooms of primary schools which needed to be
repaired, were completed mostly during the first year itself. The
reconstruction of 7,469 schoolrooms out of 8,212 destroyed, i.e., 91 per
cent, has been completed. Of the additional 3,938 schoolrooms taken up
by NGOs, 3,810 have also been completed. The repair work was
undertaken through village civil works committees, which was an excellent
example of people's participation.
The reconstruction of 448 Mid Day Meal kitchen sheds and the repair
of 13 such sheds, have been completed. The reconstruction of six
Teachers' Training Institutes (TTI) has also been completed. As regards
secondary education, repair work of 2,070 schools out of 2,141 and
reconstruction of 130 out of 145 have been completed. In respect of
municipal schools, the repair of 1,206 classrooms out of 1,514, and the
reconstruction of 121 classrooms out of 153, have been completed (Table
26, Table 26.1, Chart 5 and Chart 6).
Primary Education
Repair of Classrooms 42,678 42,678 100
Reconstruction of
Classrooms 8,212 7,469 810 91
Reconstruction of
Additional Classrooms 3,938 3,810 128 97
Repair of MDMs 13 13 100
Reconstruction of MDMs 448 448 100
Reconstruction of TTIs 6 6 10
Technical Education
Repair of Colleges 22 4 5 13 18
Reconstruction of Colleges 2 0 2 0
Contd
130
Progress of Reconstruction and Rehabilitation Work
Contd
Secondary Education
Repair of Schools 2,141 2,070 43 28 97
Reconstruction of Schools 145 130 12 3 90
Higher Education
Repair of Colleges 151 121 20 10 80
Reconstruction of Colleges 2 0 2 0 0
Municipal Schools
Repair of Classrooms 1,514 1,206 308 80
Reconstruction of Classrooms 153 121 20 0 79
* WIP means work in progress.
Chart 5: Year-wise
Chart progress
5: Yearwise of of
Progress classroom repairs
Classroom Repairs
42400
42200
42000
41800
41514
41600
41400
41200
41000
40800
Target Jan-02 Jan-03 Jan-04
131
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133
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7000
6000
5000
4000
3000
1792
2000
1000
0
Target
8212 Jan 2002
Jan-02 Jan 2003
Jan-03 Jan 2004
Jan-04
Health
All hospitals and health facilities were made functional within a short
time after the earthquake with temporary and alternative structures.
The Bhuj civil hospital which had collapsed has been reconstructed,
with the assistance of the Prime Minister's Relief Fund, at a cost of about
Rs 114 crores. The new building for the Bhuj hospital adopted the base
isolation technology that was developed in New Zealand. Isolators were
provided by M/s Robinson Seismic Ltd., a New Zealand-based company.
Engineers from New Zealand were involved in the installation of isolators.
It is a huge building with state-of-the-art equipment and was inaugurated
by the Prime Minister of India on 14 January 2004.
As regards other facilities, six CHCs, 24 PHCs, 184 sub-centres,
nine dispensaries and 183 anganwadis, have been constructed. A number
134
Progress of Reconstruction and Rehabilitation Work
135
Reconstructed Kutch district hospitalG. K. Hospital at Bhuj
The Kutch Earthquake 2001
Public Buildings
The repair and reconstruction of public buildings are implemented by
three major agencies: the state Roads and Buildings Department, the
Panchayat Department and the Gujarat State Police Housing Corporation.
136
Progress of Reconstruction and Rehabilitation Work
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138
Progress of Reconstruction and Rehabilitation Work
Contd
Strengthening of Rural
Roads (km) 3,317 1,318 106 1,893
Rural Water Supply
Drilling of Tube Wells 250 250
Pipelines (km) 2,789 1,859 930
Reconstruction of Structures 630 445 185
Power
Reconstruction of Buildings 200 0 200 0
Repairs to Transmission
Equipment (number) 465 431 4 30
Strengthening of
Transmission Line (km) 3,286 876 68 2,342
Strengthening of
Distribution Lines (km) 5,390 883 3,089 1,418
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The Kutch Earthquake 2001
Power
This programme covers the reconstruction of buildings and repair
and strengthening of transmission and distribution systems. It is envisaged
to construct 13 administrative buildings, 174 staff quarters and 13 control
room buildings. Over 3,200 km of transmission lines and over 5,300 km
of distribution lines are to be strengthened. Equipment such as meters,
transformers, and capacitors need to be procured and installed. These
activities are at various stages of progress and completion.
141
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Social Rehabilitation
Measures were taken to rehabilitate orphans, widows, the aged and
handicapped who were adversely affected by the earthquake. Such
measures included financial assistance, residential facilities, skill
upgradation, medical aid, therapy and counselling. A scheme of foster
parents was introduced so that orphans could be taken care of by their
relatives. Pensions were provided for the aged and for widows.
Financial assistance was given to 1,758 orphan children in the form
of joint bank accounts of the district collector and the child. Under the
foster parents scheme, 71 children were provided with a monthly assistance
of Rs 500 each. With the help of the National Children's Fund, 14 child
lines were established. Monthly pensions were sanctioned for 999 widows
and 657 old persons. Over 3,000 supportive devices were given to disabled
persons. Training courses were organized for 550 destitute women.
Livelihood Rehabilitation
The approach to livelihood restoration was three pronged: immediate
restoration of livelihood; enhancing the skills of artisans; and empowering
the artisans to market their skills. In addition, schemes for small-scale
industries and agriculture were introduced. The assistance included free
distribution of kits, financial assistance for damaged structures, working
capital assistance, loans at subsidized interests, marketing linkages, training
and farm input kits.
The following are some of the highlights of the progress (as of January
2004) of livelihood restoration (Table 30):
" 58,163 farmers were provided with input kits which contained not
only seed and fertilizer but also some equipment such as spray pumps,
farming tools and storage bins.
" 46,872 farmers were given financial assistance to reconstruct their
farming structures such as engine rooms and storage rooms.
" 78,890 farmers were given assistance to reconstruct their irrigation
assets.
" 3,212 handloom weavers were provided with looms.
144
Progress of Reconstruction and Rehabilitation Work
145
The Kutch Earthquake 2001
Component Beneficiaries
Sanctioned Assisted
146
Progress of Reconstruction and Rehabilitation Work
Contd
Industries
Subsidy assistance to small industries 2,162 1,629
Cash assistance to small cabins & shops 13,190 13,190
Subsidy and interest subsidy to service
and trade 4,421 3,465
Hotel/Restaurants (Services)
Rehabilitation of affected tourism units 69 69
Agriculture
Input kits 58,163 58,163
Assistance for on-farm structure 46,872 46,871
Assistance for Irrigation assets 78,890 78,759
Women's Livelihood
Women covered under Women's
Livelihood Restoration Project 16,127 10,663
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The Kutch Earthquake 2001
148
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
215,255 houses that are being reconstructed only 5,720 (2.7 per cent) are
fully relocated; 10,640 (5 per cent) houses are partially relocated in the
sense that they are reconstructed within the same revenue village. The
remaining 92.3 per cent of the houses are being reconstructed in-situ.
In the immediate aftermath of the earthquake and in view of the large-
scale destruction, a crucial issue was how to undertake the reconstruction
of such a large number of houses within a reasonable time-frame. The
quality of construction was also an issue. Some experts suggested recon-
struction through public sector undertakings and private contractors. It
was pointed out that unless there was a unified approach to reconstruction
it would not be possible to ensure timely and quality construction. After
much discussion, it was decided that the basic approach would be a process
of owner-driven reconstruction. The government would provide financial
assistance, facilitate the availability of building materials and provide
technical support. The owners would reconstruct their houses themselves.
There was no rigid or uniform design for the houses. Owners
themselves could choose a design based on their needs and preferences.
Financial assistance from the government was given in three installments,
keeping in view the stages of construction. In most cases, the payment
was made through bank accounts. About 660,000 bank accounts were
opened for such payment during a period of four months. This required
the massive mobilization of personnel from various departments so as to
assist the banks to open the accounts within a short time. Truckloads of
passbooks had to be procured from Pune and other places.
Over a thousand outlets were opened by the Gujarat State Civil Supplies
Corporation and cooperative societies to supply building materials such as
cement and steel at reasonable prices.
For the purpose of technical supervision and technical guidance for
owner-driven reconstruction, about 1,900 engineers were recruited on a
temporary basis and stationed at villages in order to ensure construction
of earthquake-resistant houses. Measures for capacity building and
dissemination of information were undertaken. A large number of masons
and engineers were trained and over one billion pamphlets on earthquake-
resistant design for repair and reconstruction were distributed. As the
villagers themselves repaired and reconstructed their houses, they became
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The Kutch Earthquake 2001
150
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
provision was made to give them some assistance, for example, the schemes
meant for families below the poverty line. There were also cases of absentee
owners and tenants who had been occupying the premises for decades
Another interesting feature of the housing programme is independent
technical audit and quality control of the houses through a process of
third-party audit, so that they conform to hazard-resistant standards. There
were three agencies, namely, the National Council for Cement and Building
Materials (NCCBM), the Central Building Research Institute (CBRI) and
IIT, Powai , which developed a quality control manual for quality checks
on the buildings being reconstructed. They also developed a training
programme for engineers.
The NCCBM, a Government of India agency, was assigned the work
of third-party quality audit. The organization was to inspect all the houses
being constructed and 10 per cent of those which were being repaired.
Such inspection commenced right from the beginning of the house
reconstruction programme. The NCCBM teams visit the houses at different
stages of construction, take samples to test in their laboratory and give
periodical reports. In the case of non-conformity to standards, remedial
measures are taken. Over 240,000 house inspections including repeat visits
were done till December 2003.
In the beginning, some deficiencies were noticed by the quality control
consultants. Subsequently, remedial measures were taken by the owners
in many cases. The help of NGOs was taken to rectify the buildings
which did not earlier conform to the guidelines, and where the owners
themselves could not rectify the deficiencies.
The Government of Gujarat also issued a resolution to the effect that
the houses which were reconstructed should be registered in the names
of both husband and wife, so as to protect the right of the woman to the
house. In the case of a widow, the house is registered in her name and not
in the name of any other relative.
House Insurance
Insurance is important for managing catastrophe risks. Some
countries have introduced programmes that envisage providing affordable
151
The Kutch Earthquake 2001
152
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
to create an insurance pool that would compete with the existing insurers.
It would be worthwhile to create awareness and encourage people to buy
insurance from the above companies, as the premium rates were quite low.
It was decided that all the houses that were reconstructed would be
insured. The GSDMA invited expressions of interest from insurance
companies, which would be willing to co-insure with the GIF. Six
companies submitted their bids of which one withdrew. Hence, five
insurance companies were selected, of which IFFCO-TOKIO is a private
company and the other four are public sector, general insurance companies.
Different districts or parts of districts were allocated to the companies for
the purpose of insurance of houses.
The insurance covers 14 types of risks including fire, earthquake,
explosion, cyclone and flood. The coverage is for a period of 10 years. All
the G-5 houses are to be compulsorily insured, whereas it is optional for
other categories of houses. The premium rate is fixed by the Tariff Advisory
Committee. The premium is Rs 349.10 for an insured sum of Rs 1 lakh.
The premium amount is deducted when the third instalment is paid to the
beneficiary. The amount of the sum insured ranges from Rs 50,000 to Rs
2 lakhs, keeping in view the size of the dwelling unit and location (rural or
urban).
In order to spread the risk, different districts/sub-districts are allotted
to different companies. An insurance company becomes the lead company
for the allotted area and the other four, along with GIF, become co-insurers.
The lead insurance company gets 35 per cent of the premium and the
other four companies equally share 20 per cent, while the GIF gets 45 per
cent. The risks are also shared in the same proportion.
Village-wise lists of insured persons are prepared and insurance is
given as a group insurance. A list of insured persons is kept at the taluka
office and each beneficiary is given a certificate indicating the insurance
of his house. Even if the insurance certificate is lost, the insured will be
able to make his claim based on the group insurance certificate available at
the taluka office. In the event of a disaster affecting a large number of
people, the Taluka Development Officer (TDO) is expected to facilitate
completion of procedural formalities in respect of the insurance claims.
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The Kutch Earthquake 2001
Urban Reconstruction
The approach of the Government of Gujarat and the GSDMA to urban
reconstruction, particularly those of the four towns of Kutch, has been
systematic and scientific.
The School of Architecture at the CEPT, Ahmedabad undertook, within
the first two months after the earthquake, a study on the nature of the
damage and approach to reconstruction/relocation in respect of some
urban areas, particularly the inner city of Bhuj. Faculty members and
students of the postgraduate programme in urban design in the School of
Architecture participated in the study. They conducted field visits, interacted
with the affected persons and undertook sample surveys in order to
ascertain the views of the public. They analysed the nature and pattern of
damage over time and in different parts of the settlement. Socio-economic
aspects were also considered. They examined, based on discussions with
the people, alternative approaches such as:
(i) development on the existing footprints respecting the existing
typology,
and
(ii) reconstitution of the plots with widening of roads and redefining
the existing community areas.
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Some Innovative Aspects of the Reconstruction and Rehabilitation Work
155
The Kutch Earthquake 2001
The outcome of the above study provided valuable inputs for planning
reconstruction of the four towns of Kutch district. It also enabled policy
makers to crystallize their ideas and to formulate an approach envisaging
a mix of in-situ reconstruction and relocation with regard to the four
towns of Kutch district.
Area Development Authorities (ADA) for the four towns of Kutch
were set up under the provisions of the Gujarat Town Planning and Urban
Development Act of 1976. The ADAs engaged reputed consulting firms
for the preparation of various plans.
The government sponsored 19 studies to collect basic information
and identify the safety aspects for in-situ reconstruction. Development
plans were prepared so as to ensure the planned use of land.
The ADAs as well as the consultants undertook many of the functions
which were required to be done by the municipalities. Senior officers
were appointed as CEOs of the ADAs. The ADAs were entrusted with the
task of issuing building permissions and development of relocation sites.
The new development plans incorporated a new set of general development
control regulations.
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Some Innovative Aspects of the Reconstruction and Rehabilitation Work
157
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The Kutch Earthquake 2001
Town plans were prepared for three towns of Kutch. It was necessary
to survey and measure plots or individual holdings keeping in view the
importance envisaged in respect of wider streets, access of each plot to
the street and so on. Thousands of plots had to be surveyed and maps
prepared. Numerous disputes and grievances also had to be settled.
Public consultation was an important part of the planning process for
the development of the four towns of Kutch. The idea was to ensure
peoples participation in the process of planning.
For the purpose of public consultation, three categories of people
were addressed: local communities, people from local governments and
NGOs working at the local level. In addition, eminent local people were
also included. Some details of public consultation in the context of Anjar
town will illustrate the approach. Public consultation was organized in
two stages. In the first stage various communities, peoples representatives
and eminent persons were consulted with regard to the formulation of a
vision document and related aspects of development of the town. After
analysing the views and opinions of people, a vision statement and a
conceptual development plan were prepared. In the second stage, public
consultation focused on the vision statement and the conceptual
development plan. The idea was to explain the conceptual plan to the
public and get their views and suggestions.
After the preparation of the development plan, written comments were
invited from the stakeholders as per sections 14 and 16 of the Gujarat
Town Planning and Urban Development Act of 1976. This was a statutory
requirement.
The draft development plan of Anjar (Volume 3) describes the process,
outcome and conclusions of public consultations. It indicates how the
target groups were selected from among those living in temporary
rehabilitation shelters and other areas, NGOs, members of the municipality
and eminent persons. Consultation sessions were organized at various
locations. The document indicates the dates of consultation, locations,
community groups, number of households who participated and so on.
The public consultations followed a format of semi-structured and open-
minded discussion. There was adequate scope for people to raise issues
and offer ideas and suggestions; the teams conducting the sessions acted
as facilitators.
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The Kutch Earthquake 2001
160
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
Role of NGOs
As mentioned earlier, a number of NGOs played an important role
during both the relief and reconstruction phases. An innovative aspect of
the programme is that it provided a systematic framework for public-
private partenership, especially for rehabilitation and reconstruction work.
The participation of NGOs was not limited to the housing sector. As
Table 31 indicates, NGOs also participated in reconstruction of school
buildings, health facilities and restoration of livelihood.
Housing
Reconstruction of Houses
in 286 Villages 80 42,528 41,902
Construction of Worksheds 14 945 638
Education
Reconstruction of Additional
Classrooms for Primary Schools - 3,938 3,810
Reconstruction of Municipality Schools
in Surendranagar and Radhanpur 9 8 6
Health
Reconstruction of Health Facilities - 246 246
Reconstruction of Anganwadis 45 246 246
Livelihood (Beneficiaries Covered)
Women's Livelihood Restoration Project 13 16,127 10,663
Formation of Self-help Groups (SHGs) 36 1,885 SHGs with
35,618 members
Day Care Centre 15 157 centres with
8,558 children.
Note: For the last two items, i.e., formation of SHGs and Day Care Centre, there are no
targets. The details provided are the achievements.
161
162
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163
The Kutch Earthquake 2001
Abhiyan, the GSDMA and UNDP brought out a report entitled Coming
Together, a few months after the earthquake. It contains details of the
work done by NGOs in areas such as shelter, water, irrigation systems,
health and livelihood. Five such editions have been published from time to
time. These volumes contain a wealth of information on the contribution
of NGOs in the reconstruction and rehabilitation work in Gujarat.
It may, however, be noted, that NGOs played a limited role in the
urban reconstruction as compared to the rural reconstruction. Government
agencies such as the GUDC and ADAs played a leading role. NGOs,
however, facilitated the interaction between the citizens and the government
agencies in some of the urban areas.
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Some Innovative Aspects of the Reconstruction and Rehabilitation Work
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The Kutch Earthquake 2001
Training of Engineers
As already mentioned, about 1,900 engineers were recruited to
supervise the housing reconstruction work and provide technical guidance
to the people. Disbursement of assistance for construction of houses was
based on the certificates given by the engineers. It was necessary to train
166
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
Training of masons
167
The Kutch Earthquake 2001
168
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
169
The Kutch Earthquake 2001
170
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
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172
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
173
The Kutch Earthquake 2001
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Some Innovative Aspects of the Reconstruction and Rehabilitation Work
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The Kutch Earthquake 2001
ERUs
An ERU has been established at the Ahmedabad Fire Brigade.
CORDAID, a Netherlands-based NGO, provided equipment that is meant
for advanced search and rescue capability in disaster situations. The
important categories of equipment are:
" Trauma Care Unit (ambulance with a life-support system);
" Emergency medical and rescue unit;
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Some Innovative Aspects of the Reconstruction and Rehabilitation Work
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The Kutch Earthquake 2001
178
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
179
The Kutch Earthquake 2001
constituted by the Government of India and to look into the best practices
in other states. The committee has done considerable work on the subject.
Some members of the committee visited the Tamil Nadu Fire and Rescue
Services to study their arrangement and suitability to Gujarat. The
committee examined other alternatives, which include corporate
organizations and public-private partnership, in search and rescue.
Emergency communication
180
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
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The Kutch Earthquake 2001
Pamphlets 100,0000
Nirdeshika for Seismic Resistant Construction 71,000
Posters on Various Aspects 44,000
Pamphlets and Posters on Insurance of Houses 50,500
Guidelines for Construction 12,000
Training Literature for Engineers 860
Training Literature for Masons 10,100
Information on Status of GERP 51,863
CDs on Current Status of the Project 1,225
Audio and Video Cassettes 5
182
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
183
The Kutch Earthquake 2001
Contd
Instructors Course Fire, police and Facilitated by trainers
and Commander Medical Personnel 24 from CORDAID/ICET
Training
184
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
185
The Kutch Earthquake 2001
Benefit Monitoring
A process of benefit monitoring was introduced. An international
consultancy firm, KPMG, was assigned the task to evaluate how and to
what extent the intended benefits of the project components have accrued
to the target groups. It is an attempt to go beyond the routine review of
progress in terms of numbers and to look at quantitative aspects and
ascertain if the earthquake-affected persons have actually received the
benefits. Some aspects of the benefit monitoring study and some of its
preliminary results are indicated below.
Objectives:
Scope:
Methodology:
Quantitative Surveys:
186
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
Qualitative studies:
" Housing
Nearly 50 per cent of the beneficiaries say that they received final
payments within 18 months of the earthquake.
93 per cent of the beneficiaries have started living in their new
houses; high occupancy reflects the confidence of the dwellers
in the new houses.
There has been an increase of 85 per cent in the number of
families below the poverty line living in pucca houses, as compared
to a 41 per cent increase for those families above the poverty
line. Of the beneficiaries, 90 per cent are now living in a similar
or larger house as compared to the pre-earthquake situation.
Newly-constructed houses have more amenities than before the
earthquake.
Overall, there has been 61 per cent increase in beneficiaries living
in homes with separate toilets, with each of the sample districts
showing a statistically significant increase.
The beneficiaries have responded well to GERP's efforts to
encourage the usage of local and recycled material.
Beneficiaries seem to be unaware that husband and wife jointly
own new houses.
187
The Kutch Earthquake 2001
" Education
Not only have the damaged schools been restored but the number
of classrooms has increased as well.
Nearly nine out of 10 students who dropped out of school because
of the earthquake have rejoined.
" Agriculture
About 95 per cent of the beneficiaries have found the assistance
given by the government useful.
Despite an earthquake and two successive drought years, the income
of 86 per cent of the farmers has been restored.
188
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
Benefit quantification:
The GERP has not only restored the quality of life index (indicated in
Chart 7 below) to the pre-earthquake levels but has also exceeded it.
1.20
1.00
0.80
0.60
0.40
0.20
0.00
Before EQ Post EQ July 2003
Housing
100%
80%
60%
98% 99%
40%
70%
53%
20%
0%
BPL APL
Pucca houses
189
The Kutch Earthquake 2001
60%
50%
40%
30% 58%
10% 19%
0%
BPL APL
Separate toilets
Disaster Preparedness
60%
50%
40%
30% 57%
20%
10%
7%
0%
Before EQ July 2003
Water Supply
50%
40%
30%
49
43
20%
10%
0%
190
Some Innovative Aspects of the Reconstruction and Rehabilitation Work
The first sample survey had covered 8,000 beneficiaries in 188 villages
and 12 urban locations. The second sample survey (March-April 2004)
covered 4,391 beneficiaries in 65 villages and 14 urban locations.
Infrastructure-related changes were assessed in respect of 20 common
villages from the first sample survey. It is envisaged that beneficiary-level
changessocio-economic aspectswill be monitored with reference to
the second survey and the final survey.
The findings of the second survey were similar to that of the first
survey. There was further progress in the restoration of social and
community infrastructure. There was greater improvement in the overall
quality of life index.
The second survey had more focus, as compared to the first, on
urban housing. The percentage of beneficiaries with pucca houses has
increased significantly. This is so even for those below the poverty line
and those belonging to socially vulnerable categories. Newly-constructed
houses have more amenities such as toilets and separate kitchens. Most
of the houses conform to the approved plans. However, there is inadequate
awareness of the house being jointly owned by husband and wife. There
is substantial increase in the awareness of housing insurance, especially
those, whose houses had to be reconstructed. Almost all the houses are
built to earthquake-resistant standards.
191
The Kutch Earthquake 2001
IX An Appraisal
192
An Appraisal
193
The Kutch Earthquake 2001
194
An Appraisal
" For areas which are prone to earthquakes, the installation of seismic
instruments needs to be reviewed. A system of continuous monitoring
should be put in place. A similar approach is needed to improve the
flood and cyclone forecasts and early warning systems.
" It is necessary to review the disaster management plans already
prepared with a view to updating and improving upon the existing
documents. There are disaster management plans at district and taluka
levels. In some cases, there are such plans for even village panchayats.
Most of these were earlier meant for flood and monsoon seasons. In
recent times there is a focus on cyclones in respect of vulnerable
districts. District-level plans need to be reviewed keeping in view the
recent experiences.
" It is necessary to prepare plans that will work at the time of an
emergency. Disaster management plans for talukas, cities and districts
should have clarity in terms of a command and control system. It
may be useful to have separate parts of an overall plan addressing risk
assessment and vulnerability analysis, response systems and inventory
of resources.
" There are district level plans prepared in the context of environmental
protection laws for chemical and industrial disasters. The subject is
handled by the Labour Department in Gujarat. It is necessary to have
a fresh look at such plans and ensure their compatibility with district
disaster management systems.
" Each district located in areas prone to disasters should maintain an
on-line inventory of resources available with the government, public
sector and private sector. This will enable easy and quick mobilization
of resources. A statewide on-line resource inventory would enable
the mobilization of resources from neighbouring districts in the event
of a disaster.
" The role of police, paramilitary and armed forces may be defined and
clearly outlined in the disaster management plans. Organizations such
as the State Reserve Police, the RAF, Central Industrial Security Force,
Civil Defence, Gram Rakshak Dal and Home Guards should be integrated
with the disaster management system, particularly with response plans.
195
The Kutch Earthquake 2001
196
An Appraisal
197
The Kutch Earthquake 2001
" It has been realized, that at the national and state levels it is essential to
have a legal framework for disaster management. Gujarat is the first
state in India to have enacted such a legislation. It is necessary to
ensure that various provisions of the act are implemented by all the
stakeholders.
" Disaster mitigation aspects should be incorporated in development
plans and schemes for the areas vulnerable to disasters. In other words,
every project should indicate how to address mitigation aspects. Plans
or projects especially for mitigation/prevention of disasters may be
given priority.
" Funds available under the ongoing schemes may be used for mitigation
and preparedness activities. For example, funds under the rural
development schemes can be used for construction of cyclone shelters
in areas which are prone to cyclones. Similarly, sites and designs of
primary school buildings in flood-prone areas may be selected in such
a manner that they can serve as shelters at the time of flood. The
design requirement for primary school buildings and hospitals and
other important buildings in seismic zones IV and V should conform
to the relevant building codes.
198
An Appraisal
" It was realized that modern cities are disaster prone and there is a
need to make them disaster resistant.
" There is a need to establish a disaster management centre and control
rooms.
" It was also found necessary to upgrade the immediate response
system.
199
The Kutch Earthquake 2001
from the Gujarat experience were discussed in detail and the delegates
exchanged ideas.
The Government of India has also taken initiatives for revising the
syllabi of engineering colleges in various parts of India, including disaster
management in the syllabi of schools, and training of teachers of engineering
colleges through the IITs. There have been important initiatives in
upgrading the search and rescue capability. A.S. Arya, who functioned as
Seismic Adviser to the GSDMA, has recently joined as an adviser to the
Ministry of Home Affairs, Government of India. The Government of India
has made commendable efforts to replicate in other states some of the
measures introduced in Gujarat.
200
An Appraisal
201
Pramod K. Mishra receiving the Sasakawa Award Certificate of Merit, on behalf of GSDMA, in Bonn, Germany
The Kutch Earthquake 2001
What was, however, ensured was that they were repaired and strengthened
to the extent feasible.
The Government of Gujarat and the GSDMA initiated right from the
beginning, many activities relating to capacity building, information
dissemination, community awareness and community preparedness. This
alone has distinguished it from similar programmes elsewhere. In most
other cases, such activities were initiated at a later stage. Another significant
aspect is the induction of reputed institutions and individuals who have
expertise and specialized knowledge.
No doubt, the GSDMA had the benefit of drawing upon the
experiences of the Maharashtra reconstruction programme and that of
the UN experts and multilateral agencies. The fact, however, remains that
the GSDMA had the commitment, willingness and ability to quickly
internalize ideas derived from others, adapt them to the Gujarat situation
and commence a variety of activities with an innovative approach.
There have been effective and decisive steps in institutionalizing disaster
management through a legal framework, regulatory reforms, training and
a knowledge network. A Disaster Management Policy and a Disaster
Management Act were finalized at an early stage. Studies on aspects such
as microzonation, hazard and vulnerability analysis, damage and loss
assessment methodology, early warning and emergency communication,
were initiated. Efforts were made to address issues relating to building
codes, development control regulation and hazard resistant construction.
Engineers and masons were trained in large numbers. Revision of syllabi
and training of teachers of technical institutions were undertaken to ensure
the availability of skill and quality on a sustainable basis. A mechanism for
screening of competent engineers and masons is envisaged through
certification and licensing.
Peoples participation, community preparedness and partnership with
NGOs are important aspects of this unique reconstruction programme.
People have been associated right from the beginning and at all stages.
There have been concerted, comprehensive and intensive efforts towards
community awareness and preparedness.
202
An Appraisal
Algeria
8
The following description of country experiences has derived significantly from Seth
(2003) and EERI (1999).
203
204
The Kutch Earthquake 2001
$ 2,200 for the Green 2 category. This was in line of those in the context
of the Bhuj earthquake, in view of the cost of building at US $ 180 per sq.
mt in Algeria.
It was stipulated after the earthquake that retrofitting should be carried
out as per the new seismic code. However, it was not feasible to implement
the new code for buildings that were to be repaired for minor and moderate
damages. In case of houses with major damage and those which were
reconstructed, efforts were made to enforce the codes through
government-appointed contractors with supervision by the Ministry of
Housing and Urban Planning.
The rehabilitation programme tried to focus on livelihood, medical
rehabilitation and social rehabilitation. Measures were also taken in respect
of capacity building such as training of engineers and introduction of
seismic engineering in graduate courses and also introducing insurance as
a form of mitigation.
Turkey
205
The Kutch Earthquake 2001
Taiwan
Yuh-Chyurn Ding, Deputy Executive Director of the 921 Earthquake
Post-Disaster Recovery Commission, discussed the 1999 earthquake,
known as the Chi-Chi earthquake (M7.3), that had resulted in the collapse
of 38,935 houses and damage to 45,320 houses, in which 2,455 people
lost their lives and 11,305 were injured. The earthquake affected both
urban and rural areas.
The government enacted the Temporary Statute for 921 Earthquake
Reconstruction for providing a legal framework for the reconstruction
work. A new organization, the 921 Earthquake Post-Recovery Commission,
was set up. A comprehensive reconstruction programme incorporating
roads and bridges, public buildings, educational and health infrastructure,
industrial reconstruction and environmental protection measures was
introduced. Unlike in Turkey, the Government of Taiwan does not undertake
reconstruction of new houses for the affected people; it provides some
temporary houses and financial assistance towards house rent after an
earthquake. In the Chi-Chi earthquake, assistance (called a consolation
allowance) was given in 32,604 cases. For reconstruction of houses by
the affected persons, the government facilitates the availability of loans
from financial institutions. However, for a few special categories such as
indigenous tribes and disadvantaged people, some low-cost housing projects
were undertaken through government and community efforts.
206
An Appraisal
Japan
207
The Kutch Earthquake 2001
California, USA
208
An Appraisal
India
209
The Kutch Earthquake 2001
showed that the affected people did not feel involved in rebuilding
their homes, particularly in the relocation villages because the
government initiated and managed the programme. In villages with
in-situ reconstruction that was a part of the repair and strengthening
programme, the work was owner driven and beneficiaries played a
more active role.
" At the relocation villages, there was some problem of drinking water.
There were also issues relating to quality of construction and suitability
of design to peoples life and practices. Inadequate participation
resulted in inadequate transfer of earthquake resistant construction
technology to the villages.
210
An Appraisal
Contd
Hanshin-Awaji, 448,929 Large-scale temporary Kobe City and
Kobe, Japan. housing through local
contractors. government
212
An Appraisal
213
The Kutch Earthquake 2001
As the nodal agency, the GSDMA strives to establish links with the
Government of India, state government departments, local authorities,
NGOs, research agencies, public and private sectors, and other
stakeholders. This is in order to share knowledge, establish coordination
mechanism and to create capacity. Strategy planning is done by the GSDMA
and implemented in collaboration with other departments and agencies.
With the Gujarat State Disaster Management Act, 2003, coming into
force, the GSDMA has statutory status. Its functions have been
enumerated in the Act.
In the context of the earthquake, an elaborate administrative structure
was put in place. It may, however, be noted that the GSDMA is at the
core of the new organizational structure. It functions with a lean core
staff consisting of seven senior officers, 10 middle-level officers, five
MBAs and some support staff. It functions with tremendous dedication,
commitment and professionalism.
214
An Appraisal
215
The Kutch Earthquake 2001
216
An Appraisal
Model 1: A Think-tank
In this model, the disaster management authority (DMA) is basically
a committee or a think-tank that helps in the formulation of a
comprehensive disaster management plan. It reviews existing procedures
and recommends guidelines, policies and laws. However, it does not get
involved in any work of implementation and even of supervision. The
prevailing system of disaster management at the centre was similar to this
model. There were committees such as the NCMC and the High Power
Committee.
217
The Kutch Earthquake 2001
The consultant suggests that in view of the need for flexibility and
adaptability, the involvement and participation of the nodal agency in disaster
management may be limited to mitigation with other components being
outsourced to implementing agencies within and outside the administrative
framework of the state.
The above aspects are relevant to most states and countries. Yet, the
specific structure will have to be designed keeping in view the hazard
profile, availability of resources and prevailing organizational structure. In
fact, the organizational structure of the GSDMA itself, appropriate for the
post-reconstruction scenario, needs to be addressed at the earliest. This is
necessary for both long-term aspects of disaster management and
sustainability of the organization.
218
An Appraisal
219
The Kutch Earthquake 2001
X Concluding Remarks
220
Concluding Remarks
221
The Kutch Earthquake 2001
222
Concluding Remarks
pointed out that there was lack of clarity in respect of transit or interim
shelter for some time. It took considerable time to provide interim shelters.
However, with varied situations and perceptions of the affected people, it
was difficult to have a uniform approach towards it. As indicated earlier,
people were given a choice of alternatives such as building materials and
cash assistance. Maybe the government should have a policy or at least a
scheme of interim shelter for major disasters.
Another aspect relates to grievance redressal. For the first time,
officers of the judiciary were associated with a reconstruction programme
and it was an innovative approach to grievance redressal. Some people
feel that more could have been done in this respect. There are also
suggestions relating to damage and loss assessment, capacity building of
engineers supervising reconstruction in rural areas, better management of
information etc., however, no system is perfect. There is always a scope
to improve upon the existing systems and procedures. It would be
worthwhile to address these and other aspects as a part of preparedness
for disasters.
Overall, the Gujarat earthquake reconstruction efforts have been widely
acclaimed by international experts and multilateral agencies. When
compared with similar programmes elsewhere in the country and abroad,
the performance of Gujarat has been considered spectacular. Not
surprisingly, the recognition has come in the form of international awards.
There is a need to build new institutions, as in the case of the Kobe
and Chi-Chi earthquakes, and to preserve the experiences and lessons
learnt for future generations. It will be a great loss to the country and to
mankind if these unique experiences and insights are not available in the
future.
In the past there have been major disasters in India and in other
countries. Every earthquake or a similar disaster leads to a flurry of activities
that lose momentum and focus as time passes. The Kutch earthquake
resulted in one of the most comprehensive endeavours in history, with
numerous initiatives. It is necessary to ensure that all such initiatives and
innovative measures are further strengthened and consolidated so that
they become sustainable.
223
The Kutch Earthquake 2001
Select Bibliography
224
Gupta, L.C., Gupta M.C., Sinha Anil, Sharma Vinod K. (2002). Gujarat
Earthquake 26th January 2001, NDM Division, Ministry of Agriculture,
Government of India, New Delhi.
Hyogo Prefectural Government (2003). Disaster Management in Hyogo
Prefecture, Kobe, Japan.
IIT, Powai, Mumbai, and Earthquake Mitigation Research Centre, Hyogo
(2001). The Bhuj Earthquake of January 26, 2001: Consequence and
Future Challenges.
Mishra, P. K. (2004). Transforming Adversity into Opportunity:
Experiences from the Gujarat Earthquake Reconstruction Programme,
in World Congress on Natural Disaster Mitigation Proceedings Volume 2,
The Institution of Engineers (India), Kolkata.
Seth, A. (2003). Learning from Earthquakes, Plain Truth, October 2003,
GSDMA, Gandhinagar, Gujarat.
United Nations Centre for Regional Development (2003). Disaster
Management for Sustainable Development Regional Development
Dialogue RDD, Vol. 24, No.1, Nagoya, Japan.
WB and ADB (2001). Gujarat Earthquake Recovery Programme:
Assessment Report: A Joint Report by the World Bank and the Asian
Development Bank to the Governments of Gujarat and India.
Yoshimoto, K (2002). The Great Hanshin-Awaji Earthquake As Seen by a
Firefighter, Kobe, Japan.
225
226
227
228
229
230
231
232
233
About NIDM
The National Institute of Disaster Management constituted under the Disaster Management
Act 2005 has been entrusted with the nodal national responsibility for human resource
development, capacity building, training, research, documentation and policy advocacy in the
field of disaster management, NIDM is steadily marching forward to fulfill its mission to make
a disaster resilient India by developing and promoting a culture of prevention and preparedness
at all levels.
Functions: Under the Disaster Management Act 2005, the Institute inter alia, has been
entrusted with the following functions.
234
Contd from front flap
of Agricultural Insurance Schemes in
MISHRA
Asia for the Asian Productivity Pramod K. Mishra
Organization, Tokyo. He has
published a number of articles in
national and international journals of
repute. Dr Mishra has also presented
papers at a number of national and Pramod K. Mishra is presently
international seminars, as well as Chairman, Gujarat Electricity
THE KUTCH
National Institute of Disaster Management published from the UK in 1996. This
( Ministry of Home Affairs, Govt. of India)
book was and continues to be a major
IIPA Campus, 5B - IP Estate, Mahatma Gandhi Marg, New Delhi - 110002 (India)
contribution on theoretical and
EARTHQUAKE 2001
Tel. 011-23702432, 23705583, 23766146
empirical aspects of the economics of
Concept & Printed at Fax : 011-23702442, 23702446
agricultural insurance. He is also the
Colour Edge Website : www.nidm.gov.in
colouredge@live.com, 09811530188 editor of Development and Operation
ISBN 81-8347-000-9 Recollections, Lessons and Insights Contd on back flap